Comprehensive Annual Financial Report FOR THE FISCAL YEAR ENDED June 30, 2006 Prepared by the Office of Management and Budget
State of North Dakota Office of Management and Budget Fiscal Management Division 600 East Boulevard Avenue Dept. 110 Bismarck, ND 58505-0400 701-328-2680 This CAFR is also available at our Fiscal Management website: http://www.state.nd.us/fiscal/cafrindex.htm Cover: Pre-press by Richtman s Printing, Bismarck, North Dakota Photo on cover provided by Connie M. Johnson, Bismarck, ND Inside photos provided by ND Tourism Office.
COMPREHENSIVE ANNUAL FINANCIAL REPORT FOR THE FISCAL YEAR ENDED JUNE 30, 2005 TABLE OF CONTENTS INTRODUCTORY SECTION Page Letter of Transmittal...7 Certificate of Achievement for Excellence in Financial Reporting... 12 North Dakota State Government Organization Chart... 13 List of Principal State Officials... 14 FINANCIAL SECTION Independent Auditor's Report...16 Management s Discussion and Analysis...19 Basic Financial Statements: Government-wide Financial Statements Statement of Net Assets...30 Statement of Activities...32 Governmental Fund Financial Statements Balance Sheet...34 Reconciliation of the Balance Sheet Governmental Funds to the Statement of Net Assets...35 Statement of Revenues, Expenditures, and Changes in Fund Balances...36 Reconciliation of the Statement of Revenues, Expenditures, and Changes in Fund Balances Governmental Funds to the Statement of Activities...37 Proprietary Fund Financial Statements Statement of Net Assets...38 Statement of Revenues, Expenses, and Changes in Fund Net Assets...40 Statement of Cash Flows...41 Fiduciary Fund Financial Statements Statement of Fiduciary Net Assets...44 Statement of Changes in Fiduciary Net Assets...45 1
Page Component Unit Financial Statements Combining Statement of Net Assets...46 Combining Statement of Activities...48 Notes To The Financial Statements...50 Required Supplementary Information Other Than Management s Discussion and Analysis Budgetary Comparison Schedule General Fund...112 Budgetary Comparison Schedule Budget-to-GAAP Reconciliation General Fund...113 Budgetary Comparison Schedule Other Funds...114 Budgetary Comparison Schedule Budget to GAAP Reconciliation Federal Fund...115 Note to Required Supplementary Information Budgetary Reporting...116 Combining and Individual Fund Statements: Combining Balance Sheet Nonmajor Governmental Funds...128 Combining Statement of Revenues, Expenses, and Changes in Fund Balance Nonmajor Governmental Funds...132 Combining Statement of Net Assets Nonmajor Enterprise Funds...138 Combining Statement of Revenues, Expenses, and Changes in Fund Net Assets Nonmajor Enterprise Funds...140 Combining Statement of Cash Flows Nonmajor Enterprise Funds...142 Combining Statement of Net Assets Internal Service Funds...147 Combining Statement of Revenues, Expenses, and Changes in Fund Net Assets Internal Service Funds...148 Combining Statement of Cash Flows Internal Service Funds...149 Combining Statement of Fiduciary Net Assets Pension, Investment, and Private-Purpose Trust Funds...152 Combining Statement of Changes in Fiduciary Net Assets Pension, Investment, and Private-Purpose Trust Funds...156 Combining Statement of Fiduciary Assets and Liabilities Agency Funds...159 Combining Statement of Changes in Assets and Liabilities Agency Funds...160 Combining Statement of Net Assets Nonmajor Component Units, Proprietary Funds...163 Combining Statement of Activities Nonmajor Component Units, Proprietary Funds...164 2
Page STATISTICAL SECTION Net Assets by Component...168 Changes in Net Assets...169 Fund Balances, Governmental Funds...170 Changes in Fund Balances, Governmental Funds...171 Taxable Sales by Industry...172 Sales Tax Revenue Payers by Industry...172 Ratios of Outstanding Debt by Type...174 Pledged Revenue Coverage...176 Legal Debt Limit...178 Demographic and Economic Indicators...179 Principal Employers...180 Employment by Industry...180 Education Enrollment...181 State Employees by Agency...182 Operating Indicators by Function...184 Capital Assets by Function...185 Agricultural Production...186 3
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Introductory Section 5
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OFFICE OF MANAGEMENT AND BUDGET 600 East Boulevard Avenue, Fourth Floor Bismarck, North Dakota 58505-0400 December 12, 2006 To the Governor, Legislators and Citizens of the State of North Dakota: In accordance with North Dakota Century Code (NDCC) section 54-44-04(14), we are pleased to submit the Comprehensive Annual Financial Report (CAFR) of the State of North Dakota for the fiscal year ended June 30, 2006. This report has been prepared by the Office of Management and Budget. The financial statements contained in the CAFR have been prepared in accordance with generally accepted accounting principles (GAAP) applicable to state and local governments, as promulgated by the Governmental Accounting Standards Board (GASB). Responsibility for both the accuracy of the data and the completeness and fairness of the presentation, including all disclosures, rests with the state's management. To the best of our knowledge and belief, the information contained in the CAFR is accurate in all material respects and reported in a manner that presents fairly the financial position and results of operations of the State s primary government and the component units for which it is financially accountable. All disclosures necessary to enable the reader to gain an understanding of the State of North Dakota's financial affairs have been included. The CAFR is presented in three sections: Introductory, Financial and Statistical. The introductory section contains this transmittal letter, Certificate of Achievement for Excellence in Financial Reporting, the State organization chart and a list of principal officials. The financial section includes: the independent auditor's report on the basic financial statements; Management s Discussion and Analysis (MD&A), which provides an introduction, overview and analysis of the basic financial statements; the basic financial statements, which present the government-wide financial statements and fund financial statements for governmental funds, proprietary funds, fiduciary funds, and component units, together with notes to the basic financial statements; required supplementary information, other than MD&A, which presents budgetary comparison schedules; and the supplemental financial data which includes the combining financial statements. The statistical section includes a history of selected financial and demographic information. The state s management is responsible for establishing and maintaining an internal control structure designed to ensure that the assets of the government are protected from loss, theft or misuse and to ensure that adequate accounting data are compiled to allow for the preparation of financial statements in conformity with accounting principles generally accepted in the United States of America. The internal control structure is designed to provide reasonable, but not absolute, assurance that these objectives are met. The concept of reasonable assurance recognizes that (1) the costs of a control should not exceed the benefits likely to be derived and (2) the valuation of costs and benefits requires estimates and judgments by management. In compliance with state statute, the Office of the State Auditor (SAO) audited the State s financial statements. The goal of the independent audit was to provide reasonable assurance that the financial statements of the State for the fiscal year ended June 30, 2006, are free of material misstatement. The independent audit involved examining, on a test basis, evidence supporting the amounts and disclosures in the financial statements, assessing the accounting principles used and evaluating the overall financial statement presentation. Their examination was conducted in accordance with GAAP and the standards applicable to financial audits contained in Government Auditing Standards as published by the Comptroller 7
General of the United States. The SAO concluded, based upon the audit, that there was a reasonable basis for rendering an unqualified opinion that the State s financial statements for the fiscal year ended June 30, 2006, are fairly presented in conformity with GAAP. The independent auditor s report is presented as the first component of the financial section of this report The State of North Dakota is also required to undergo a single audit in conformity with the provision of the Single Audit Act Amendments of 1996 and the U.S. Office of Management and Budget's Circular A-133, Audits of States, Local Governments, and Non-Profit Organizations. Information related to this single audit, including a schedule of expenditures of federal awards, the independent auditor's reports on internal controls and compliance with applicable laws and regulations, and a schedule of findings and questioned costs, are included in a separately issued biennial single audit report. GASB Statement No. 34 requires that management provide a narrative introduction, overview and analysis to accompany the basic financial statements in the form of a Management Discussion and Analysis (MD&A). This letter of transmittal is intended to complement MD&A and should be read in conjunction with it. The MD&A can be found immediately following the Independent Auditor s Report. PROFILE OF THE GOVERNMENT The State of North Dakota provides for a full range of services, including education, health and social services, highway maintenance and construction, law enforcement, judicial, public safety, business regulation, community and economic development, and natural resource development. The State s reporting entity reflected in the CAFR includes all the funds of the state as legally defined, as well as all of its component units in conformity with the requirements of GASB Statement No. 14. Statement No. 14 provides that the financial statements should emphasize the primary government and permit financial statement users to distinguish between the primary government and its component units. Consequently, the transmittal letter, MD&A, and the financial statements focus on the primary government and its activities. Although information pertaining to the discretely presented component units is provided, their separately issued financial statements should be read to obtain a complete overview of their financial position. The State s reporting entity is described more fully in Note 1A to the basic financial statements. The State operates through a biennial appropriation, which represents agency appropriations recommended by the governor and presented to the Legislative Assembly at the beginning of each legislative session. The budget is legally required to be adopted through passage of appropriation bills by the Legislative Assembly and signed by the governor. The governor has line item veto powers over all appropriations subject to legislative override. Once passed and signed, the appropriation bill becomes the departments' financial plan for the next two years. Changes to the appropriation are limited to Emergency Commission authorization, initiative, allotment, or referendum action. The State does not budget by fund nor does it formally budget revenues. The legal level of budgetary control is at the agency, appropriation authority and expenditure line item level. The State's budgetary policies and procedures are further explained in Note 1D on the notes to the basic financial statements. LOCAL ECONOMY North Dakota has enjoyed an expanding and diversifying economy in recent years. Education, health services, and government constitute over 35 percent of the state s employment, providing economic stability and insulating the state from the cyclic extremes of the national economy. A listing of the state s twenty largest employers demonstrates the diversity of the economy. Top employers include: the U.S. military, the state university system, health care providers, manufacturers, financial and insurance companies, agricultural commodity processors, information technology companies, energy producers, and retail companies. 8
Increases in the price of crude oil have increased crude oil production in the state. Production has increased from an average of 86,000 barrels per day in September 2004 to 113,000 barrels per day in September 2006. In 2005, the state ranked 9 th nationally in crude oil production out of 31 oil-producing states. The 36 million barrels produced in 2005 represented 1.9 percent of the nation s total crude oil production. Production increased 5.9 percent in 2004 and rose 14.5 percent in 2005. In upcoming years, Moody s Economy.com, the states economic consultant, predicts continued growth for the state economy. Through 2009, gross state product is expected to grow by over 10 percent and the state labor force by 16,000 jobs. During that time, the unemployment rate is expected to remain stable at slightly over 3 percent and personal income is expected to grow by 3.8 to 4.5 percent per year. LONG-TERM FINANCIAL PLANNING The long-term financial plan of the state is to support programs that result in steady, stable growth of its economy. In turn, the growing and stable economy supports important government functions such as education and human services. North Dakota s conservative budgeting and revenue forecasting, combined with economic growth, has allowed the budget stabilization fund to grow to its statutory maximum of five percent of the general fund biennial budget. Balances in the oil trust fund and foundation aid stabilization fund continue to grow as well. Conservative revenue forecasting is a practice in North Dakota. With the assistance of the Revenue Forecasting Advisory Committee, comprised of representatives of all major industries in the state, the legislative and executive branches of government form a consensus on all revenue forecasts. These forecasts have very accurately reflected the state s economy and resulting tax collections. Statutorily, bond payments for capital construction bonding projects are limited to one-tenth of the revenue generated from a one-cent sales tax. All capital budget requests for new or expanded facilities require information on increased operating and maintenance costs. The capital budget is a six-year plan for the facility needs of the state. RELEVANT FINANCIAL POLICIES North Dakota has several financial policies that will ensure that in the event of an economic downturn, North Dakota state government will be able to continue to provide its citizens with necessary services. Should North Dakota experience a revenue shortfall of 2 percent or more, the State is able to access funds from the budget stabilization fund. The budget stabilization fund currently has a balance $99.5 million. In addition, the state is also able to reduce general fund expenditures across the board to alleviate the effects of a revenue shortfall. In the event of such general fund expenditure cuts, the foundation aid stabilization fund was established to hold K-12 education harmless. Dollars from this fund would replace the amount of general fund dollars cut, thus K-12 education would not experience a reduction in funding. Funding for the foundation aid stabilization fund comes from a portion of oil extraction tax collections. The State also recognizes that, while tax collections from oil contribute significantly to the general fund, we cannot count on those resources indefinitely. Thus the permanent oil trust fund has been established. All oil tax collections in excess of $71 million are deposited into the permanent oil tax trust fund. 9
MAJOR INITIATIVES North Dakota continues to implement programs and policies that improve the lives and well being of its citizens by creating more opportunities and better jobs. Priorities include creating a strong business climate, excellence in education, enhancing energy, improving agriculture and developing water resources, and taking care of people. The North Dakota Trade Office has been extremely effective in increasing the state s international export market. North Dakota exports have nearly doubled since 2000, from $625 million to $1.2 billion. The Governor s budget has recommended $2.6 million to expand these activities. The Governor is proposing a Workforce and Career Promotion initiative that will strengthen the linkages between public schools and business on careers in North Dakota so students can make career decisions that will allow them to stay in the state. The initiative includes $1.2 million for 10 workforce talent coordinators to be stationed in each of the North Dakota Joint Powers Agreement areas. The Internship Program Initiative is a proposal by the Governor to develop the state s workforce by expanding the use of credit and non-credit internships for postsecondary students. The internships will provide a way for students to make connections with North Dakota businesses and serve as an incentive for students to continue employment in the state. Previously, $30 million has been invested in the Governor s Centers of Excellence program, which harnesses the University System as an engine of economic growth for North Dakota and creates higher paying jobs and career opportunities for its citizens. The Governor is proposing to invest another $20 million in this very worthwhile program. Governor Hoeven created the North Dakota Commission on Education Improvement for the purpose of making recommendations to the legislature for improving funding adequacy and equity among districts. Governor Hoeven s recommendation for elementary and secondary education funding for the 2007-09 not only follows the work of the Commission, but goes above and beyond the Commission s recommendation. The Commission recommended a landmark change in the state s K-12 funding system, as well as a $60.0 million general fund increase in funding for state aid to K-12 education. In addition, the Governor has included an additional $16 million from the general fund and an additional $4.6 million from the state tuition fund to bring the total state funded increase in state aid to education to an historic $80.6 million. To better protect North Dakota citizens by reducing the severity of the flu, the Governor has included $2.3 million in his budget for the purchase and stockpile of antiviral drugs like Tamflu and Relenza. An antiviral stockpile will assure availability of these drugs at a time when they may not be available through normal distribution supply chains because of high demand in other areas of the country. AWARDS AND ACKNOWLEDGEMENTS The Government Finance Officers Association of the United States and Canada (GFOA) awarded a Certificate of Achievement for Excellence in Financial Reporting to the State of North Dakota for its comprehensive annual financial report for the fiscal year ended June 30, 2005. This was the 15th consecutive year that the government has achieved this prestigious award. In order to be awarded a Certificate of Achievement, a government must publish an easily readable and efficiently organized comprehensive annual financial report. This report must satisfy both generally accepted accounting principles and applicable legal requirements. A Certificate of Achievement is valid for a period of one year only. We believe that our current comprehensive annual financial report continues to meet the Certificate of Achievement Program s requirements, and we are submitting it to the GFOA to determine its eligibility for another certificate. 10
In addition, the State of North Dakota received the GFOA s Award for Distinguished Budget Presentation for its 2005-2007 budget. In order to qualify for the Distinguished Budget Presentation Award, the State s budget document was judged to be proficient in several categories, including policy documentation, financial planning, and organization. This report was prepared by staff members of the Fiscal Management Division of the Office of Management and Budget. Their dedication and efforts are greatly appreciated. We also extend our gratitude to the numerous individuals from virtually all the state agencies and institutions, especially the Office of the State Auditor, for their assistance. Sincerely, Pam Sharp, Director Office of Management and Budget 11
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ORGANIZATIONAL CHART The Electorate Legislative Executive Judicial Legislature Superintendent of Public Instruction Commissioner of Insurance Attorney General State Auditor State Treasurer Governor Lieutenant Governor Commissioner of Agriculture Secretary of State State Tax Commissioner Public Service Commission Supreme Court of North Dakota Legislative Council & Committees Governing Boards & Commissions Trial Courts State Agencies Ag/Commerce Education General Government Health & Human Services Transportation Natural Res. & Recreation Public Safety & Corrections Regulatory Agencies University System 13
NORTH DAKOTA PRINCIPAL STATE OFFICIALS June 30, 2006 ELECTED OFFICIALS John Hoeven, Governor Jack Dalrymple, Lieutenant Governor Alvin A. Jaeger, Secretary of State Wayne Stenehjem, Attorney General Tony Clark, Public Service Commissioner Kevin Cramer, Public Service Commissioner Susan Wefald, Public Service Commissioner Roger Johnson, Commissioner of Agriculture Robert R. Peterson, State Auditor Jim Poolman, Commissioner of Insurance Dr. Wayne Sanstead, Superintendent of Public Instruction Cory Fong, Tax Commissioner Kelly Schmidt, State Treasurer LEGISLATIVE Matthew M. Klein, Speaker of the House Rick Berg, House Majority Leader Merle Boucher, House Minority Leader Lt. Gov. Jack Dalrymple, President of the Senate Bob Stenehjem, Senate Majority Leader David P. O Connell, Senate Minority Leader JUDICIAL Gerald VandeWalle, Chief Justice, North Dakota Supreme Court Carol Ronning Kapsner, Justice Mary Muehlen Maring, Justice Daniel J. Crothers, Justice Dale V. Sandstrom, Justice 14
Financial Section 15
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Those financial statements were audited by other auditors whose reports thereon have been furnished to us, and our opinion, insofar as it relates to the amounts included for those entities, is based on the reports of the other auditors. We conducted our audit in accordance with auditing standards generally accepted in the United States of America and the standards applicable to financial audits contained in Government Auditing Standards, issued by the Comptroller General of the United States. Those standards require that we plan and perform the audit to obtain reasonable assurance about whether the financial statements are free of material misstatement. An audit includes examining, on a test basis, evidence supporting the amounts and disclosures in the financial statements. An audit also includes assessing the accounting principles used and significant estimates made by management, as well as evaluating the overall financial statement presentation. We believe that our audit and the reports of other auditors provide a reasonable basis for our opinions. In our opinion, based on our audit and the reports of other auditors, the financial statements referred to above present fairly, in all material respects, the respective financial position of the governmental activities, the business-type activities, the aggregate discretely presented component units, each major fund, and the aggregate remaining fund information of the State of North Dakota, as of June 30, 2006, and the respective changes in financial position and cash flows, where applicable, thereof for the year then ended in conformity with accounting principles generally accepted in the United States of America. As described in Note 2 to the basic financial statements, the State of North Dakota changed its availability period for recognizing tax revenue from one year to 60 days. As described in Note 18 to the basic financial statements, the Bank of North Dakota elected to present an unclassified balance sheet because current assets are not matched with current liabilities. Presentation of a classified balance sheet would give the false impression that there is a liquidity problem at the bank. Presentation of a classified balance sheet for the Bank of North Dakota would be misleading to the extent that the financial statements may be materially misstated. In accordance with Government Auditing Standards, we have also issued under separate cover, our report dated December 12, 2006 on our consideration of the State of North Dakota s internal control over financial reporting and on our tests of its compliance with certain provisions of laws, regulations, contracts and grant agreements and other matters. The purpose of that report is to describe the scope of our testing of internal control over financial reporting and compliance and the results of that testing, and not to provide an opinion on the internal control over financial reporting or on compliance. That report is an integral part of an audit performed in accordance with Government Auditing Standards and should be considered in assessing the results of our audit. The Management s Discussion and Analysis and Budgetary Comparison Schedules on pages 19 through 28 and 112 through 116 are not a required part of the basic financial statements but are supplementary information required by accounting principles generally accepted in the United Sates of America. We and the other auditors have applied certain limited procedures, which consisted principally of inquiries of management regarding the methods of measurement and presentation of the required supplementary information. However, we did not audit the information and express no opinion on it. 17
Our audit was conducted for the purpose of forming opinions on the financial statements that collectively comprise the State of North Dakota s basic financial statements. The combining and individual fund financial statements and schedules listed in the table of contents are presented for purposes of additional analysis and are not a required part of the basic financial statements. This supplementary information has been subjected to the auditing procedures applied by us and the other auditors in the audit of the basic financial statements and in, our opinion, based on our audit and the reports of other auditors, is fairly stated in all material respects in relation to the basic financial statements taken as a whole. The data included in the introductory and statistical sections of this report has not been subjected to the auditing procedures applied by us and the other auditors in the audit of the basic financial statements and, accordingly, we do not express an opinion thereon. Robert R. Peterson State Auditor Edwin J. Nagel, Jr., CPA Director December 12, 2006 18
MANAGEMENT'S DISCUSSION AND ANALYSIS This section of the State of North Dakota s (the State s) Comprehensive Annual Financial Report presents a discussion and analysis of the State s financial performance, providing an overview of the activities for the fiscal year ended June 30, 2006. Please read it in conjunction with the transmittal letter at the front of this report and with the State's financial statements, which follow this section. FINANCIAL HIGHLIGHTS Government-wide: The assets of the State exceeded its liabilities at fiscal year end by $4.6 billion (reported as net assets), an increase of $448 million from the previous year. The net assets of governmental activities increased by 13.8% while the net assets of the business-type activities showed an increase of 5.96%. Fund Level: As of the close of fiscal year 2006 the State s governmental funds reported combined ending fund balances of $1.9 billion, an increase of $352 million. Of this amount, $888 million represents unreserved fund balance, with the remaining amount of $1 billion reserved for specific purposes, such as debt service, capital projects, and permanent trust for education. At the end of the fiscal year, unreserved fund balance for the General Fund was $413 million. The enterprise funds reported net assets at year-end of $1.7 billion, an increase of $96 million during the year. Long-term Debt: The State s total debt (bonds and notes payable) increased during the fiscal year to $1.64 billion, an increase of $100 million, or 6.4%, which represents the net difference between new issuances and payments and refundings of outstanding debt. During the year the State issued $404 million in bonds and $637 million in notes. More detailed information regarding these activities and funds is included in Note 3I. OVERVIEW OF THE FINANCIAL STATEMENTS This discussion and analysis is an introduction to the State s basic financial statements, which consists of three components: 1) government-wide financial statements, 2) fund financial statements, and 3) notes to the financial statements. This report also contains other supplementary information in addition to the basic financial statements. Government-wide Statements The government-wide financial statements provide a broad view of the State s operations in a manner similar to a private-sector business. The statements provide both short-term and long-term information about the State s financial position, which assists in assessing the State s economic condition at the end of the fiscal year. These statements include all non-fiduciary assets and liabilities using the accrual basis of accounting. The current year s revenues and expenses are taken into account regardless of when cash is received or paid. The Statement of Net Assets presents all of the State s assets and liabilities, with the difference between the two reported as net assets. Over time, increases and decreases in net assets are an indicator of whether the State s financial position is improving or deteriorating. The Statement of Activities presents information showing how the State s net assets changed during the most recent fiscal year. All changes in net assets are reported as soon as the underlying events giving rise to the change occur, regardless of the timing of related cash flows. Therefore, revenues and 19
expenses are reported in these statements for some items that will only result in cash flows in future fiscal periods (e.g., uncollected taxes and earned but unused vacation leave). Both statements report three activities: Governmental Activities The activities in this section are primarily supported by taxes and intergovernmental revenue. Most of the State s basic services, such as education, health and human services and transportation, are reported under this category. Business-type Activities These functions are intended to recover all or a significant portion of their costs through user fees and charges to external users of goods and services. The Bank of North Dakota, Workers Compensation, and the University System are examples of the State s business-type activities. Discretely Presented Component Units These are operations for which the State has financial accountability but they have certain independent qualities as well. These entities operate similar to private-sector business and the business-type activities described above. The State has 18 discretely presented component units. Financial information for these entities is presented separately from the financial information presented for the primary government. The government-wide financial statements can be found immediately following this discussion and analysis. Fund Financial Statements A fund is a fiscal and accounting entity with a self-balancing set of accounts that the State uses to keep track of specific sources of funding and spending for a particular purpose. The State, like other state and local governments, uses fund accounting to ensure and demonstrate compliance with finance related legal requirements. The basic fund financial statements begin immediately after the government-wide statements and provide more detail about the major individual funds. The State's funds are divided into three categories governmental, proprietary, and fiduciary. It is important to note that these fund categories use different accounting approaches and should be interpreted differently. Governmental funds -- Most of the State's basic services are reported in the governmental funds. Governmental funds are used to account for essentially the same functions reported as governmental activities in the government-wide financial statements. However, unlike the government-wide financial statements, the governmental fund financial statements focus on the near-term inflows and outflows of spendable resources. They also focus on the balances left at year-end that are available for future spending. Such information may be useful in evaluating whether there are more or fewer financial resources that can be spent in the near future to finance the State's programs. These funds are reported using modified accrual accounting, which measures cash and all other financial assets that can readily be converted to cash. Because the focus of governmental funds is narrower than that of the government-wide financial statements, it is useful to compare the information presented for governmental funds with similar information presented for governmental activities in the government-wide financial statements. By doing so, readers may better understand the long-term impact of the government s near-term financing decisions. Both the governmental fund balance sheet and the governmental fund statement of revenues, expenditures, and changes in fund balances provide a reconciliation to facilitate this comparison between governmental funds and the governmental activities. These reconciliations are presented on the page immediately following each governmental fund financial statement. Governmental funds include the General Fund and special revenue, capital project, debt service, and permanent funds. The State has several governmental funds, of which three (3) are considered major individual funds. Those three are the General Fund, the Federal Fund, and the School Permanent Trust Fund. Each of these major funds is presented in a separate column in the governmental fund balance 20
sheet and in the governmental fund statement of revenues, expenditures and changes in fund balance. The remaining governmental funds are combined in a single aggregated column on the basic fund statements. Individual fund data for each of these nonmajor governmental funds can be found in the other supplementary information section of this report. Proprietary funds Services for which the State charges customers a fee are generally reported in proprietary funds. The state maintains two different types of proprietary funds, enterprise funds and internal service funds. Enterprise funds report activities that provide supplies and services to the general public. Internal service funds report activities that provide supplies and services for the State's other programs and activities. Like the government-wide statements, proprietary funds use the accrual basis of accounting. Although the basis of accounting is the same for the government-wide and proprietary fund statements, reconciliation between these statements is presented because of the allocation of internal service funds net income. The State has four (4) major enterprise funds: The Bank of North Dakota, Housing Finance, University System, and Workforce Safety and Insurance. These four funds are each presented in separate columns on the basic proprietary fund financial statements. The remaining enterprise funds are combined in a single total column on these statements. Individual fund data for each of the nonmajor enterprise funds can be found in the other supplementary information section of this report. The State s internal service funds are reported as governmental activities on the government-wide statements, because the services they provide predominantly benefit governmental activities. The State s five (5) internal service funds are reported on the basic proprietary fund financial statements in a single combined column. Individual fund data for the internal service funds is provided in the form of combining statements found elsewhere in this report. Fiduciary funds -- The State acts as a trustee, or fiduciary, for its employee pension plans. It is also responsible for other assets that, because of a trust arrangement, can be used only for the trust beneficiaries. The State's fiduciary activities are reported in separate Statements of Fiduciary Net Assets and Changes in Fiduciary Net Assets. These funds, which include pension (and other employee benefit) trust, investment trust, private-purpose trust, and agency funds, are reported using accrual accounting. The government-wide statements exclude fiduciary fund activities and balances because the State cannot use these assets to finance its operations. Notes to the Financial Statements The notes provide additional information that is essential to a full understanding of the data provided in the government-wide and the fund financial statements. The notes to the financial statements can be found immediately following component units financial statements. Required Supplementary Information The basic financial statements are followed by a section of required supplementary information. This section includes a budgetary comparison schedule, which includes reconciliation between the statutory fund balances for budgetary purposes and the fund balances for the General Fund and Federal Fund as presented in the governmental fund financial statements. Other Supplementary Information Other supplementary information includes combining financial statements for non-major governmental, non-major enterprise, internal service, and fiduciary funds. These funds are added together, by fund type, and presented in single columns in the basic financial statements. 21
FINANCIAL ANALYSIS OF THE GOVERNMENT AS A WHOLE As noted previously, net assets may serve over time as a useful indicator of a government s financial position. The State s combined net assets (governmental and business-type activities) totaled $4.6 billion at the end of fiscal year 2006. Net assets increased 9.7% from the prior fiscal year. State of North Dakota's Net Assets (Expressed in Thousands) Governmental Business-Type Total Primary Activities Activities Government 2005 2006 2005 2006 2005 2006 Current and Other Assets $1,970,752 $2,317,282 $4,697,809 $4,962,990 $6,235,218 $6,514,553 Capital Assets 1,223,594 1,295,151 668,949 699,548 1,892,543 1,994,699 Total Assets 3,194,346 3,612,433 5,366,758 5,662,538 8,127,761 8,509,404 Long-Term Liabilities Outstanding 249,406 360,935 2,082,838 2,085,153 2,332,244 2,446,088 Other Liabilities 367,263 353,347 1,647,417 1,849,561 1,581,338 1,437,341 Total Liabilities 616,669 714,282 3,730,255 3,934,714 3,913,582 3,883,429 Net Assets Invested in Capital Assets, Net of Related Debt 1,094,551 1,077,843 505,916 516,243 1,600,467 1,594,086 Restricted 1,046,115 1,281,417 393,237 391,313 1,439,352 1,672,730 Unrestricted 437,011 538,891 737,349 820,268 1,174,360 1,359,159 Total Net Assets $2,577,677 $2,898,151 $1,636,502 $1,727,824 $4,214,179 $4,625,975 NOTE: The Governmental Activities amounts and Business-Type Activities amounts do not cross foot to the total Primary Government column because internal balances are reported separately as internal receivables and internal payables. A total internal balance remains due to certain Business-Type Activities having different fiscal year ends than the Governmental Activities. The largest component (36%) of the State s net assets is restricted net assets. These restricted net assets represent resources that are subject to external restrictions, constitutional provisions, or enabling legislation on how they can be used. The remaining portion, unrestricted net assets, may be used at the State s discretion, but often have limitations on use based on State statutes. Thirty-four percent (34%) of the State s net assets reflects its investment in capital assets such as land, buildings, equipment, and infrastructure (roads, bridges and other immovable assets) less any related debt outstanding that was needed to acquire or construct the assets. The State uses these capital assets to provide services to citizens; consequentially, these assets are not available for future spending. Although the State s investment in its capital assets is reported net of related debt, it should be noted that the resources need to repay this debt must be provided from other sources, since the capital assets themselves cannot be used to liquidate these liabilities. The condensed financial information on the following page was derived from the government-wide Statement of Activities and reflects how the State s net assets changed during the fiscal year: 22
State of North Dakota's Changes in Net Assets (Expressed in Thousands) Governmental Business-Type Total Primary Activities Activities Government 2005 2006 2005 2006 2005 2006 Revenues: Program Revenues: Charges for Services $ 171,779 $ 201,847 $ 741,172 $ 794,071 $ 912,951 $ 995,918 Operating Grants & Contributions 1,084,731 1,144,749 304,001 283,315 1,388,732 1,428,064 Capital Grants & Contributions 81,850 56,557 5,998 577 87,848 57,134 General Revenues: Income Taxes 320,049 432,072 - - 320,049 432,072 Sales Taxes 630,179 678,821 - - 630,179 678,821 Other Taxes 220,751 276,771 - - 220,751 276,771 Investment Earnings 4,106 12.409 - - 4,106 12,409 Tobacco Settlement 12,830 11,712 - - 12,830 11,712 Other 22,337 23,696 - - 22,337 23,696 Total Revenues 2,548,612 2,838,634 1,051,171 1,077,963 3,599,783 3,916,597 Expenses General Government 243,437 264,911 - - 243,437 264,911 Education 486,221 496,821 - - 486,221 496,821 Health and Human Services 826,832 854,450 - - 826,832 854,450 Regulatory 17,966 19,677 - - 17,966 19,677 Public Safety and Corrections 132,997 145,480 - - 132,997 145,480 Agriculture and Commerce 55,796 54,458 - - 55,796 54,458 Natural Resources 53,440 62,431 - - 53,440 62,431 Transportation 300,322 372,245 - - 300,322 372,245 Interest on Long Term Debt 8,104 12,881 - - 8,104 12,881 Bank of North Dakota - - 57,502 71,264 57,502 71,264 Housing Finance - - 45,922 46,580 45,922 46,580 Loan Programs - - 13,889 17,236 13,889 17,236 Mill and Elevator - - 95,223 101,198 95,223 101,198 State Lottery - - 18,917 15,622 18,917 15,622 Unemployment Compensation - - 43,394 43,314 43,394 43,314 University System - - 696,918 743,271 696,918 743,271 Workforce Safety and Insurance - - 183,466 116,021 183,466 116,021 Other - - 6,436 14,922 6,436 14,922 Total Expenses 2,125,115 2,283,354 1,161,667 1,169,428 3,286,782 3,452,782 Increase (decrease) in Net Assets Before Contributions and 423,497 555,280 (110,496) (91,465) 313,001 463,815 Transfers Contributions to Permanent Fund Principal 13,636 11,156 - - 13,636 11,156 Transfers (170,925) (215,089) 167,350 188,109 (3,575) (26,980) Increase in Net Assets 266,208 351,347 56,854 96,644 323,062 447,991 Net Assets - Beginning -As 2,311,469 2,546,804 1,579,648 1,631,180 3,891,117 4,177,984 Restated Net Assets- Ending $ 2,577,677 $ 2,898,151 $ 1,636,502 $ 1,727,824 $ 4,214,179 $ 4,625,975 23
Governmental Activities Governmental Activities increased the State s net assts by $351 million, compared to a $266 million increase in the prior fiscal year. The largest increases in the State s revenues for fiscal year 2006 were from the State s tax revenues. Individual and corporate income taxes increased 35%, oil and gas taxes increased 29%, and sales and use taxes increased 7.7%. The increase in individual income tax and sales tax collections is due to strong gains in the North Dakota economy, including expansion of the retail tax base throughout the state and significant job growth both from new jobs and wage gains in existing jobs. The growth in corporate income tax came from record audit collections and a very strong business sector. The strength in these collections is due in part to oil companies record profits. Oil and gas tax revenues rose because of record high world oil prices that raise the taxable base and have led to increases in the state s oil production. Expenses for total governmental activities increased 7%, with the major increase in the transportation function. Significant costs for this function during the fiscal year include the demolition and reconstruction of the Four Bears Highway Bridge and the addition of two lanes to a section of Highway 2. None of the other governmental functions had substantial increases. The following chart depicts revenues of the governmental activities for the fiscal year: Revenues - Governmental Activities Fiscal Year Ending June 30, 2006 Contributions to Permanent Fund 0.39% Capital Grants & Contributions 1.99% Unres. Investment Earnings 0.44% Operating Grants & Contributions 40.21% General Taxes 48.64% Charges for Services 7.09% Miscellanous 0.83% Tobacco Settlement 0.41% The chart on the following page depicts expenses of the governmental activities for the fiscal year: 24
Expenditures - Governmental Activities Fiscal Year Ending June 30, 2006 Interest on Long Term Debt 0.56% Natural Resources 2.73% Education 21.76% Agriculture and Economic Dev 2.39% General Government 11.60% Health and Human Services 37.42% Regulatory 0.86% Public Safety 6.37% Transportation 16.30% Business-type Activities Net assets of the business-type activities increased by $97 million during the fiscal year. Factors contributing to these results included: The net assets of the Bank of North Dakota increased $9 million primarily due to a $7 million decrease in transfers to the State s General Fund. Workforce Safety and Insurance s (WSI) net assets increased $32 million primarily due to underwriting and investing activities. Underwriting consists of pricing premiums to cover the workers compensation loss exposure, with changes in the loss estimates recognized in the current year of operations. WSI reported investment income of $39.4 million during 2006, while increasing their loss estimates only $6.4 million. The net assets of Housing Finance increased $4.9 million as a result of program operations and financing activities. The North Dakota State University System net assets increased $29 million during 2006, as a result of increases in tuition, room and board rates, and increased grant and contract awards. These increases contributed to an operating revenue increase of 9% while operating expenses increased only 5%. The net assets of the Unemployment Compensation Fund increased $21.8 million as a result of the ongoing tax increases intended to move the Fund towards stability and solvency, as well as a robust economy with growing employments and lower levels of insurance claims. The 1999 Legislature established a seven year time frame in which to build the Fund to a target level to ensure its solvency. As a result of this plan along with a robust economy, this target level was reached during the year. 25
FINANCIAL ANALYSIS OF THE STATE S FUNDS Governmental Funds As the State completed the year, its governmental funds reported combined fund balances of $1.9 billion, an increase of $352 million from the prior fiscal year. Approximately $790 million of this total amount constitutes unreserved fund balance, which is available for appropriation for the general purposes of the funds. The remainder of fund balance is reserved and is not available for new spending because it has already been dedicated to various commitments such as long-term receivables, debt service, and capital projects. The General Fund is the chief operating fund of the State. At the end of current fiscal year, unreserved fund balance of the General Fund was $413 million and reserved fund balance was $2 million. Total fund balance rose during the fiscal year by $150 million, due to increases in tax revenues. Individual income and corporate income taxes had the largest increase, nearly $90 million, followed by sales and use taxes with a $32 million increase. By the end of fiscal year 2006 General Fund revenues increased 12% from the prior year. The School Permanent Trust Fund balance at June 30, 2006 improved by $78 million from the prior year, largely because of an increase in royalties income. The Federal Fund balance at June 30, 2006 decreased $2 million due to increased unavailable revenues. Proprietary Funds The State s proprietary funds provide the same type of information found in the government-wide financial statements, but in more detail. The increases in the net assets of the proprietary funds are discussed under Business-type Activities above. General Fund Budgetary Highlights: The State has a biennial appropriated budget. The fiscal year ended June 30, 2006, was the first year of the 2005-07 budget cycle. At the beginning of the 2005-07 budget cycle, there was an increase in the original budget of $8 million. The majority of this increase is due to the authorized carryover of general fund appropriation authority from the 2003-05 biennium, which is reported as an appropriation adjustment for the 2005-07 budget. Some of those carryover amounts are noted below. Several state agencies were authorized by appropriation laws to carryover a portion or all of their general fund appropriation for various purposes, including the Office of Management and Budget, $.9 million, Legislative Council and Assembly, $2.2 million, Department of Commerce, $1 million, and the University System, $2.6 million. Various other state agencies received smaller amounts of carryover totaling $.7 million. A few agencies also received general fund carryover dollars from the 2003-05 biennium for capital construction projects. These capital construction carryover dollars totaled $.7 million. There were no expenditures in excess of general fund spending authority. CAPITAL ASSETS AND DEBT ADMINISTRATION Capital Assets: At the end of the fiscal year 2006, the State had invested nearly $2 billion, net of accumulated depreciation, in a broad range of capital assets. Depreciation charges for this fiscal year totaled $104 million. 26